An Oracle White Paper

August 2009

Lean Performance Management for

Public Sector

Oracle White Paper Lean Performance Management

Disclaimer
The following is intended to outline our general product direction. It is intended for information purposes
only, and may not be incorporated into any contract. It is not a commitment to deliver any material, code, or
functionality, and should not be relied upon in making purchasing decisions. The development, release, and
timing of any features or functionality described for Oracles products remains at the sole discretion of
Oracle.

Oracle White Paper Lean Performance Management

Executive Overview............................................................................. 3
Challenges Facing the Public Sector .................................................. 3
Creating a Truly Transformational Government .............................. 3
Meeting Heightened Constituent Expectations ............................... 4
Managing Workforce Transition ...................................................... 4
Minimizing Technological Risk ........................................................ 4
Important Trends in the Public Sector ................................................. 5
Lean Processes .............................................................................. 5
Shared Services.............................................................................. 5
Commercial Off-the-Shelf (COTS) Applications .............................. 6
Business Intelligence (BI)................................................................ 6
Lean Performance Management..................................................... 6
Performance Management in Action: Customer Example .................. 9
Challenges Facing the City ............................................................. 9
Results of the Lean Performance Management Effort .................. 10
Conclusion ........................................................................................ 14

Oracle White Paper Lean Performance Management

There is nothing so useless as doing efficiently that which should not be done at all.
Peter Drucker

Executive Overview
When offering insights into business performance, executives frequently speak of doing
things faster or cheaper or doing more with less. This passes, in their minds, as
successful performance management. Yet true performance management is so much
richer than simply executing tasks more quickly or with fewer headcount.
The premise of this paper on Lean Performance Management is straightforward:
Measurement through Key Performance Indicators (KPI) can provide an important and
necessary calibration of performance assuming that alignment exists between the
organizations mission, structure, supporting processes and performance tools /
measures. Without this alignment, its unclear that the right KPIs are being measured.
Further, this alignment is ultimately what ensures that the appropriate KPIs are not only
defined and measured but also that a closed loop process exists to incorporate analyses
back into the organization. At its essence, performance management should influence
and inform outcome management by continuously optimizing costs, quality, and customer
service. This is Lean Performance Management.

Challenges Facing the Public Sector

Public organizations face at least four key challenges: Creating a truly transformational
government, meeting heightened constituent expectations, managing workforce transition, and
minimizing the risks of implementing new technologies. Monetary issues, which are much more
of operating realities that color all decisions, are the fifth challenge.

Creating a Truly Transformational Government

Transformational government involves a significant re-envisioning of the roles, goals, and
objectives of government in serving not only its constituents, but also society at large. In
traditional governments, routine changes in leadership and personnel are frequently coupled with
fluctuating economic cycles, societal pressures, and other internal and external influencers. The
result of this constant and continuous leadership flux frequently manifests itself in a short-term
focus and a lack of truly executable medium- and long-term strategic plans. In such cases,
governments and the parties in power have the incentive to invest scarce resources in

Oracle White Paper Lean Performance Management

initiatives that are likely to succeed during their tenure, thereby positioning themselves for the
next election or upheaval. This short-term view negatively impacts sustainability both of the
core mission and of the particular initiative as resources for program initiatives contract and
expand.

Meeting Heightened Constituent Expectations

As constituents grow increasingly savvy about technology, they have a higher expectation for
better service. Some of these expectations are more realistic than others. For example, in
Gartners 2005 report, Government in 2020: Taking the Long View1, it predicted that governments
will not fully succeed in meeting constituents desire for a single form of contact, despite the
fact that the underlying technology that enables it is robust and proven. However, reducing
service complexity and turnaround time are both achievable and measurable goals as is
creating a single record or set of data per constituent that can be accessed via multiple channels
and organizations. Governments need to find ways to harness technology to meet these
heightened expectations.

Managing Workforce Transition

One of the key challenges facing the public sector is the aging workforce and its impact on the
strategic planning process. By some estimates, up to 50 percent of the public sector workforce is
eligible for retirement within the next few years. Although these numbers may vary across the
public sector, multiple studies have shown that the public sector is more exposed to the problem
of workforce transition than private enterprises often due to competition for workers from
private sector employers. The ability to recruit and retain employees is becoming even more
critical to government organizations operational plans. And because the organizational
imperatives and technological enablers in the public sector are moving closer to those in the
private sector, the skills needed to manage major governmental initiatives are increasingly scarce.

Minimizing Technological Risk

A recent article in The Economist2 painted a not uncommon scenario observed in electronic
government projects: Political leaders announce a revolutionary scheme with loud fanfare. Civil
servants draw up a tender and award it to the lowest (but potentially not the most competent)

Gartner, Inc., December 20, 2005

Edward Lucas, Technology and Government: The Electronic Bureaucrat, The Economist special report,
February 14, 2008

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bidder. Work starts, but political pressure causes the specifications of the project to change.
Costs spiral, disillusionment grows, and the project either limps into life infuriating everyone
by its poor performance or is expensively buried. At the heart of this scenario is the failure of
stakeholders to realize that electronic government is not just about buying and installing
computers. Rather, it involves actually re-designing the way a government works, and efficiently
executing projects while actively managing change.
Minimizing technological risks requires organizational alignment, a clear value proposition and an
executable path to value.

Important Trends in the Public Sector

Some emerging trends in the private sector may help break the politicized cycle and short-term
pressures in the public sector as well. These include the application of Lean manufacturing
processes to public sector activities, the increased use of off-the-shelf software applications, the
sharing of services among different government entities, and the use of business intelligence
technologies and techniques to analyze complex data and thus make better decisions. Each of
these items plays an integral role in the concept of Lean Performance Management.

Lean Processes
Long embraced by the commercial manufacturing sector, Lean represents a systemic approach to
addressing costs, quality, and customer service issues in public service institutions. According to
McKinsey & Company3, the impact of a Lean approach in such cases could be substantial.
Crucially for the public sector, a Lean approach breaks with the prevailing view that there has to
be a trade-off between the quality of public services and the cost of providing them. The
process of applying Lean techniques involves systematically analyzing operations over an
extended period of time, thereby extending the horizon for analysis out of the short-term and
into the medium- and long-term.

Shared Services
An important trend in the public sector is the rapid uptake in the use of Shared Services. This
parallels the growing importance of Shared Services in the private sector. According to a 2005
Accenture study, 85 percent of governments surveyed said Shared Services are, or will be,

3 Nina Bhatia and John Drew, Applying Lean Production to the Public Sector, The McKinsey Quarterly, June
2006

Oracle White Paper Lean Performance Management

important to supporting their organizations strategic goals. Furthermore, 66 percent of

governments surveyed have already implemented Shared Services or are in the process of
implementing them. Another 28 percent plan to implement Shared Services within the next
three years. Only 6 percent have no plans to implement Shared Services.
Again, contemplating the tradeoff between short-, medium-, and long-term goals and time
horizons, the fact that governments are considering strategic goals let alone identifying Shared
Services as a way to achieve them highlights the fact that government agencies are looking at
broader horizons. Specifically, government organizations are beginning to investigate how to
design, implement, and optimize Shared Services along a number of parameters, using their core
Enterprise Resource Planning (ERP) infrastructure as a backbone. This not only allows them to
serve additional constituents to diminish marginal costs, but also lets them re-allocate scarce
resources to meet core mission objectives.

Commercial Off-the-Shelf (COTS) Applications

The public sector has been largely successful at posting information on the Web. But attempting
to provide interactive, online public services has been expensive and delivers poor returns. The
three main reasons for this, as identified by The Economist, are the lack of competitive pressure, a
tendency to re-invent the wheel, and a focus on technology rather than on organizational
transformation. In the private sector, tight budgets for information technology tend to spark
innovation. The public sector, unfortunately, has been taken in by over-priced, over-promised
and over-engineered customized systems. Using COTS software enables a departure from the
traditional scenario of high cost with low return.

Business Intelligence (BI)

In addition to these operational models, a fourth important trend the use of analytics, or BI
is gaining mindshare in the public sector. BI has been widely adopted in the commercial
sector and has been used in smaller parts of the public sector for some time. However, public
sector organizations have become increasingly interested in applying analytics much more
broadly, to enable what-if scenarios, analyses, and complex decision-making processes. Two
key prerequisites to take advantage of this trend are data integrity and data integration. Without
access to a single set of reliable source data, analytics has little value. This fact necessitates that
virtually all operational processes be driven by ERP-based administrative systems.

Lean Performance Management

Going back to Peter Druckers comment, there is nothing so useless as doing efficiently that
which should not be done at all. The crux of the issue lies not just in the continuous
examination of efficiency considerations, but also in effectiveness measures and service-related
outcome evaluation. Why should an organization care if it is processing claims with increased

Oracle White Paper Lean Performance Management

speed, if the claims could be processed elsewhere and / or constituents are complaining about
the quality of the process? It is not enough to think about costs the true path to value is
through a combination of cost, quality, and customer service. (See Figure 1)
So how do the four concepts identified above provide a foundation for a Lean Performance
Management approach?

Embracing Lean is the first step. Lean is a simple concept. Just as Mr. Drucker points out,
enhancing efficiency in the face of effectiveness can be worthless. Lean forces organizations
to examine cost, quality, and constituent service collectively and continuously. Costs equal
efficiency. Quality equals effectiveness. Constituent service equals service.

It can be challenging for highly static and devolved organizations to adopt Lean processing.
Shared Services provide a great foundation and transition to Lean as Shared Services foster the
concepts of sustainability, transparency, and enhanced operational performance. For Leanfocused organization-wide efforts, Shared Services may well be the hammer and Lean the nail.

An effective Shared Services model, in turn, is predicated on a standardized approach to

technology. As a result, COTS is generally a key enabling component to healthy and
sustainable Shared Services. While there are a large number of Shared Services examples out
there where COTS is a key component of the overall strategy, frankly Oracle Corporation has
one of the better stories. Ten years into Oracles Shared Services initiative, estimated savings
are $2 Billion, leveraging Oracles own COTS solution.

BI represents the latest wave in enabling Lean Performance Management. Once your
organization has embraced Lean, has an operational model such as Shared Services which can
support Lean, and has adopted COTS or other comprehensive technology solution that can
enable Shared Services, BI can be used to evaluate performance, link to KPIs and establish a
continuous improvement, closed-loop model.

FOUNDATION FOR A LEAN PERFORMANCE MANAGEMENT APPROACH

Oracle White Paper Lean Performance Management

Yogi Bera

Figure 1

Defining Success
Youve got to be very careful if you dont know where you are going, because you might not get there.

The key to success is identifying, defining, and communicating what success means at the outset
of the initiative. In other words, how does one interpret the value of proposed efforts?
If one can wait until the initiative is underway, everyone else will create his or her own version of
success / failure.
A key piece of the Oracle Insight value proposition is helping customers identify and define what
success means in their own environment (learn more about the Oracle Insight program on page
13). Some customers define it as risk mitigation. Others define it as monetary return. Still
others as a broader set of goals or initiatives: We will become a greener organization. Without
defining success and the value associated with being successful, initiatives often wander and
perspectives change.

Oracle White Paper Lean Performance Management

Lean Performance Management is not simply about KPIs, but how an organization defines,
tracks, manages those KPIs; how the KPIs inform us of what changes must be made; how those
changes are actually embedded back into the business; and how the business creates value based
upon the data. Oracle Insight helps customers create strategies around such efforts.
Establishing a Lean Performance Management operational model coupled with a clear definition
of success will enable organizations to create lasting value.

Performance Management in Action: Customer Example

It is mentioned in the Heightened Constituent Expectations paragraph on page 4, that a single
form of contact is a highly desired end-state. The following represents an example of the
before and after 311 Customer Call Center metrics gathered through the Oracle Insight
process for a capital city in the U.S.

Challenges Facing the City

Improving Service Quality

The Citys organizational structure was confusing and bureaucratic to its citizens. It was not
always apparent who could answer their questions and resolve their problems. Even after
citizens reached the correct agency or department, the quality of service didnt match what theyd
come to expect in the private sector. Not surprisingly, citizens were frustrated, resulting in
universally low levels of satisfaction, as well as a high volume of complaint calls.

Increasing Operational Efficiencies

The Citys overlapping organizational processes and redundant departmental responsibilities were
the root causes of massive operational inefficiencies. Its call center was highly decentralized,
with each department handling its own inbound calls and responding to citizens requests for
services in its own way. The result: Inconsistent documentation of calls and responses; no
standardized processes for delivering services; no Service Level Agreements (SLA) to ensure the
quality of work; few attempts to track, analyze, and report on citizen-facing activities; and only
sporadic efforts to confirm that citizen requests for service had been attended to appropriately.
Enhancing Transparency

Precisely because decentralized organizational structures had resulted in isolated silos of legacy
information systems, City citizens had limited visibility into the Citys operations. A notable lack
of accountability resulted from the fact that municipal activities were not tracked in a way that

Oracle White Paper Lean Performance Management

corresponded to citizens requests for information or action. (After all, if data is not consistently
collected, analyzed, and measured, no performance metrics exist to evaluate accomplishments
against target goals). This negatively impacted the Citys ability to align its daily activities with
strategic objectives.

Results of the Lean Performance Management Effort

Improve Operational Efficiency

The City saw dramatic improvements in operational efficiency. This was largely manifested
through significant productivity gains, coupled with reduced costs of handling inbound calls and
distributing service requests. The outcome allowed the City to allocate resources to more
strategic initiatives.
Enabled Shared Services Model

By centralizing processes for inbound call handling, the City was able to reduce the resources
required to handle the same or greater number of calls. This enabled the City to eliminate waste
while improving flexibility. As a result, although the volume of calls increased, the cost per call
decreased by 50 percent.
Improved Processes

By adopting Lean principles, the City was able to improve the efficiency and effectiveness of
organizational processes. For example, the City was able to eliminate potential duplicate work
orders, reducing the need to deploy multiple crews. And as part of its closed-loop system, the
City streamlined the processes involved in receiving, documenting, submitting and tracking
service requests from the initial citizen call to its final resolution.
Improved Workflow

In addition to streamlining its ability to answer calls from citizens, the Citys 311 solution also
improved service request workflow by decreasing the processing time required to respond to and
complete work orders. It achieved this by minimizing the number of manual transactions
required minimizing manual documentation to instantly create action-oriented workflows.
Improved Field Service Performance

By decreasing the entry of duplicate calls and thus the instances of sending multiple crews to the
same location, the City has increased its efficiency in providing service. Moving forward,
integrated electronic scheduling provides an opportunity to optimize dispatch and routing so that
appointments can be scheduled much more precisely.

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Enhanced Citizen Services

As a result of the enhanced operational model, the Citys 311 solution also enabled it to
dramatically improve the quality of the services it delivered to its citizens, primarily by
re-inventing the partnership between the citizens and City Hall. This was measured using a
variety of metrics.
Reduced Wait Time

By realigning personnel based on their competencies, streamlining and integrating processes, and
routing inbound calls through a central data hub and repository, the City was able to reduce the
aggregated annual minutes of citizen time spent on hold. It was also able to resolve issues faster
once citizens were connected with city representatives.
Reduced Abandoned-Call Rate

The 311 solution resulted in an improved abandoned-call rate (the rate at which callers hang up).
Prior to 311, the average rate was 23 percent varying from 5 percent to 50 percent depending
on department. After the 311 solution was implemented, the rate dropped to 6 percent.
Improved Citizen Access

The City created a no wrong door access channel for its citizens, and increased citizen
accessibility to allow input from and feedback to everyone, from single constituents to
neighborhood community groups. It also opened up access to city representatives 24x7.
Previously, access had been limited to work hours during the workweek only.
More Efficient Issue Resolution Lifecycle

By creating a closed-loop lifecycle which ensured that every citizen call was resolved the
City was able to measure the volume and types of inbound calls in real-time. The call details
were automatically aggregated and analyzed, providing the City with valuable intelligence about
the service demands of its citizens.
Improved Citizen Satisfaction

By implementing 311, the City significantly advanced its citizen partnership agenda, as evidenced
by citizen feedback that included letters praising the City for the professionalism and improved
customer service being provided.
Enhanced Strategic Communications

Through community awareness campaigns, the City was able to improve public awareness about
such things as gang activity and crime. As a natural extension of collaboration with

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neighborhood watch programs and local community associations, the 311 services improved
communications among all participants in such programs.
Better Resource Allocation

As a direct result of the Citys ability to handle calls more efficiently, the City was able to
re-deploy resources to more strategic initiatives.
Higher First-Call Resolution Rates

The City today resolves 87 percent of citizen issues on the first call. By eliminating the need for
citizens to call back and minimizing the number of calls ransferred to other government
representatives the City cut the per-call cost even further.
Reduced Non-Emergency Calls to 911

By directing calls to the right department, the Citys 311 service significantly reduced the volume
of non-emergency calls to 911. This enabled the City to allocate the right resources to the right
place at the right time.
Improved Knowledge Management

By capturing institutional knowledge in a database as calls come in, the City simultaneously
documents current processes and improves the ability of customer service representatives to
resolve common constituent issues.
Enhance Reporting, Transparency, and Planning

The Citys 311 solution also improved accountability and planning. Because of the sophisticated
reporting capabilities of Oracles 311 citizen services solution, City executives have improved
governance and provided more transparency into City operations, new and improved processes,
greater responsiveness to citizens, and improved internal supply chain management. This
enabled them to more effectively plan how to allocate resources among various initiatives and
support city and state-wide best practices.
Enhanced Transparency

By developing flexible reporting capabilities for both internal and external uses, the City today
has visibility into the entire citizen-call-response lifecycle. It routinely documents call metrics,
including time, purpose, geographic distribution, and time-to-resolution.
Improved Analytical Capabilities

By analyzing call data, service requests, and work order requests, City executives can identify
emerging trends and program needs. When aggregated, this data provides insights into current

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and future citizen demands as well as potential solutions. And because these analyses are
accessible by department managers, the City manager, and mayor, as well as selected City council
members, City leaders can collaborate on identifying operations that are overstaffed and / or
underfunded and use that knowledge to more precisely align resources with citizen needs.
Improved Decision-Making

Historically, because of the lack of analytical capabilities, City managers and other stakeholders
were not able to easily identify social, financial, or cultural trends that were impacting the City.
By utilizing Siebels single-citizen data / information hub, City managers will be able to better
plan programs, train employees, and allocate budgets based on evolving needs.
Enhanced Performance Management

By tracking and sharing metrics on how well services are being delivered by employees,
contractors, and partners, the City is able to boost accountability across all departments. This
facilitates and directly drives operational excellence. Today, the Citys 311 call center handles 90
percent of all the work orders generated, which allows for better management and service-level
planning across the City.
Reduced Risk

Increased transparency and reporting capabilities have enabled the City to potentially mitigate
overall risk. This has been particularly useful when responding to legal claims associated with
work orders. By having comprehensive documentation of each citizen call, the potential cost of
litigation has been dramatically reduced.
Improved Planning

City management now has access to sufficient data to make better decisions, ranging from more
accurate budget forecasting to strategic planning to ensure the City is on track to realize
its vision.
Improve Revenue Generation and Capture

The Oracle 311 solution has increased the Citys ability to generate and capture revenue.
Municipalities frequently address budget shortfalls by increasing the tax-based revenue stream
through increased fees on licenses, permits, and registrations. But if the processes used to collect
those fees are inefficient, cities can still lose substantial revenues by failing to identify citizens
who are delinquent payers.
Today, by identifying gaps in citizens compliance with laws and regulations, the City is now
planning ways to collect more of the fees due it. Among other strategies, it plans to provide
alternate channels for collecting past-due receivables, fines, and license fees. Additionally, any

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follow-up calls can be re-routed from individual departments to a centralized location for more
efficient collection of fees.

How can Oracle help?

Oracle Insight Program
Oracle Insight uses a proven methodology which is flexible and customized to individual
company objectives. Most engagements consist of four steps: Industry Perspective, Discovery,
Solution Design, and Solution Presentation.
Industry Perspective

Given the plethora of acquisitions made by Oracle, we want to help you understand how these
new capabilities have helped others in your industry. Oracle facilitates an in-depth discussion
with your executives about industry trends, best practices, vision, strategy, challenges, and
roadblocks.
Discovery

Leveraging established industry frameworks and robust intellectual property, Oracle Insight
collaborates with you to assess your current business processes and identify the capabilities
required to achieve your corporate strategy.

Solution Design

Oracle recommends best practice processes and supporting technology, including a

time-to-benefit analysis and implementation plan.
Solution Presentation

The Insight team works with you to create an executive presentation including supporting
information, business benefits, and value drivers, to help you build consensus among colleagues
and executive management or secure funding from your board.
Oracle Insight engagements are flexible. Once executive commitment is secured, the program
will be customized to your needs and objectives as it relates to your project.

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Conclusion
In summary, like many Public Sector organizations, the City faced three specific challenges:
Service quality, operational efficiencies and effectiveness, and transparency. As a result of
implementing a Lean Perforamance Management model leveraging Lean, Shared Services,
COTS, and BI the City not only addressed its key issues, but also established a highly
sustainable operational platform.

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August 2009
Author: Patrick Mungovan, Senior Director,
Industry Strategy & Insight
Oracle Corporation
World Headquarters
500 Oracle Parkway
Redwood Shores, CA 94065
U.S.A.

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